Il regionalismo visto da Ida Nicotra

Nell’ambito del ciclo d’incontri con autorevoli giuristi sul tema del regionalismo, pubblichiamo, questa settimana, un’intervista alla prof.ssa Ida Nicotra, Ordinario di Diritto costituzionale presso l’Università degli Studi di Catania.

Professoressa, si può sostenere che la cultura dell’autonomia, e in particolare dell’autonomia regionale, si sia veramente affermata tra gli studiosi, tra i protagonisti della politica e nell’opinione pubblica del nostro Paese?

Bisogna distinguere nettamente la posizione degli studiosi e più in generale degli intellettuali che hanno dimostrato una spiccata sensibilità verso tematiche che si rifanno al principio dell’autonomia dall’atteggiamento della classe politica.

La cultura dell’autonomia si è sviluppata proprio grazie alla molteplicità di opere scientifiche che si sono occupate  del tema. Alla base della prospettiva di affermazione dell’autonomia vi è l’idea di fondo secondo cui lo Stato contemporaneo democratico e pluralista può trovare piena attuazione solo all’interno di un sistema ordinamentale in cui le funzioni di indirizzo politico, legislative ed amministrative siano ripartite su più livelli di governo ed esercitate da organi direttamente rappresentativi del corpo elettorale.

La storia e l’ingegneria costituzionale hanno individuato due differenti modelli di declinazione del principio autonomistico: quello federale e quello regionale. L’esperienza italiana rappresenta, insieme a quella spagnola di Stato autonomico, uno degli esempi più significativi di Stato regionale, soprattutto dopo la legge cost. n. 1 del 1999 e novella costituzionale del 2001 di revisione dell’intero Titolo V della Costituzione. La ricerca nel campo del diritto regionale ha avuto il merito di sottolineare le differenze, anche profonde, tra Stato Regionale e Stato federale. Nello Stato regionale, infatti, la Costituzione riconosce la pari dignità dei differenti Enti territoriali che compongono la Repubblica, garantendo loro un ampio grado di autonomia politica ed amministrativa. Ma quest’ultimi non partecipano al procedimento di revisione costituzionale, né detengono funzioni giurisdizionali. L’aspetto maggiormente deficitario del regionalismo italiano rimane la mancanza di una Camera rappresentativa delle autonomie territoriali. Si tratta di un modello ancora “incompiuto”. Malgrado si discuta oramai da decenni di riformare il sistema di bicameralismo perfetto ogni ipotesi di revisione è miseramente fallita. Mi sembra che abbandonare definitivamente il modello incentrato sulla presenza di due Assemblee legislative in cui l’una costituisce, per identità di composizione e funzioni, la mera duplicazione dell’atra sia il modo per dare nuovo slancio al principio autonomistico. In proposito, occorre costruire una diversa articolazione del sistema bicamerale, realizzando un bicameralismo “asimmetrico”, sulla falsariga di esperienze di altri Paesi europei, con la creazione di una Camera, per un verso, rappresentativa delle istanze territoriali e per altro verso, non collegata al Governo dal rapporto fiduciario. In questa direzione vanno le proposte di realizzare un abbinamento tra elezione del Senato ed elezione dei singoli Consigli Regionali, allo scopo di realizzare appuntamenti elettorali omogenei e coerenti per favorire la caratterizzazione territoriale della seconda Camera.  La mancanza di una Camera delle Autonomie è stata colmata da meccanismi di supplenza in cui si svolge il principio di leale collaborazione, fondamentale corollario di tutti gli ordinamenti composti. Il “Sistema delle conferenze”, cioè l’insieme di quelle sedi concertative di cui fanno parte la Conferenza Stato – Regioni, la Conferenza Stato, Città ed Autonomie locali, nonché la Conferenza Unificata, nasce proprio per l’esigenza di delineare un assetto flessibile delle competenze, finalizzato a ricercare il livello di governo più adeguato a svolgere una certa funzione. E’ in tale ottica che si è resa necessaria la costruzione di sede in cui la cooperazione possa trovare svolgimento.

La congiuntura economica, particolarmente negativa negli ultimi anni, ha fatto emergere un aspetto che costituisce l’altra faccia dell’autonomia, rimasta per molto tempo in ombra,  anche nel pensiero juspubblicistico. Il principio di responsabilità del decisore pubblico è strettamente connaturato al principio di autonomia finanziaria. Gli ordinamenti connotati da uno spiccato policentrismo istituzionale sono caratterizzati dalla regola delle “finanze separate”. Così, Stato centrale ed enti periferici sono tenuti a procurarsi i mezzi necessari per far fronte alle attività loro attribuite grazie al riconoscimento a ciascuna entità di un autonomo potere impositivo. Negli ordinamenti a struttura federale l’autonomia fiscale è accompagnata proprio dal principio di accountability, che sta ad indicare la possibilità da parte dei cittadini di controllare l’operato delle amministrazioni locali e di fare valere la responsabilità politica di queste in sede di rinnovo degli organi elettivi. Le scelte in merito alla fissazione dei tributi, nonché quelle circa il modo di destinare tali risorse costituiscono parte integrante del programma politico su cui gli elettori sono periodicamente chiamati ad esprimersi. Ma l’autonomia fiscale non può essere considerata un concetto assoluto; infatti, la forma di Stato sociale impone uno standard di prestazioni sui diritti civili e sociali per cui il principio della divisione delle risorse finanziarie dei diversi livelli di governo deve lasciare il posto alle istanze unitarie, attraverso l’affermazione del principio perequativo. Tutti gli ordinamenti giuridici contemporanei, ad impianto federale o regionale, nel rispetto del dovere di solidarietà, prevedono sistemi di perequazione rispondenti all’esigenza di garantire condizioni uniformi di qualità di vita dei cittadini su tutto il territorio nazionale.

Il discorso è diverso con riferimento alla classe politica che, non di rado, ha utilizzato l’autonomia come “grimaldello”, nel tentativo di scardinare i presupposti fondanti il Welfare State e lo Stato unitario. I partiti “territoriali” hanno orientato la loro azione politica verso l’ottenimento di un ambito di autonomia sempre più ampio dal governo centrale per giungere alla completa indipendenza. In particolare, la Lega Nord si è spinta fino a rivendicare il diritto ad una assoluta autodeterminazione. Ed in effetti, fin dal momento elettorale, il partito leghista si è presentato ai suoi elettori esponendo esplicitamente l’intenzione di tendere alla secessione. Una visione miope, dunque, che dimentica di considerare l’autonomia alla luce del valore di unità ed indivisibilità della Repubblica italiana, siccome sancito nell’art. 5 della Costituzione.

L’opinione pubblica, dal canto suo, anche sulla scia delle affermazioni sovente “vittimistiche” dei rappresentanti dei movimenti politici a vocazione localistica che imputano ai Governi ogni responsabilità di una politica economica deludente se non addirittura fallimentare, pretende di utilizzare il principio autonomistico ai fini di rivendicazioni, soprattutto di carattere economico, nei confronti dello Stato centrale.

Che consigli darebbe, quanto ai temi da approfondire e al metodo da adottare, a chi, oggi, volesse avvicinarsi allo studio del regionalismo in Italia, della sua teoria e delle sue applicazioni?

Lo studio del regionalismo non può prescindere dall’approfondimento dei processi storici che hanno portato alla unificazione del nostro Paese, non trascurando gli aspetti geografici, culturali ed economici che segnano la profonda differenza tra alcune zone dell’Italia rispetto ad altre. Consiglierei di soffermare l’attenzione sulla specialità che contraddistingue il regime giuridico – costituzionale delle Regioni ad autonomia differenziata e sui differenti esiti della stessa nei diversi contesti territoriali. 

Nella letteratura italiana e internazionale su autonomia, regionalismo e concetti affini, quali sono i classici la cui lettura lei ritiene fondamentale per chi voglia avvicinarsi allo studio del regionalismo?

Consiglierei la lettura del volume di Albert Venn Dicey, An introduction to the Study of the Law of the Constitution e  i saggi contenuti nel The Federalist, cui si ispira la Costituzione degli Stati Uniti d’America con la Convenzione di Philadelphia del 1787.

 Fra le opere di autori italiani consiglierei di leggere la voce “Autonomia” di Santi Romano, in Frammenti di un dizionario giuridico, il contributo di Carlo Esposito “Autonomie locali e decentramento amministrativo nell’art. 5 della Costituzione”, “Carattere dell’amministrazione comunale e provinciale” di Giorgio Berti e “Lo Studio sull’autonomia politica delle Regioni in Italia” di Temistocle Martines.

A cura di Alessandro Morelli

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